TO: Board of Supervisors
FROM: Brian D. Bordona, Director of Planning, Building, and Environmental Services
REPORT BY: Jesse Gutierrez, Principal Planner - Sustainability
SUBJECT: Receive a presentation on the Draft Napa Regional Climate Action and Adaptation Plan.
RECOMMENDATION
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Receive a presentation on the Draft Napa Regional Climate Action and Adaptation Plan. (No Fiscal Impact)
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BACKGROUND
Climate change has presented significant challenges locally and is increasingly supercharging weather patterns leading to greater impacts on communities. Climate change is experienced in many different forms, which locally may include effects such as prolonged heat waves, extended drought periods, altered frequency and severity of rain events, and increased wildfire risk caused by conditions that are more favorable for ignition and rapid spread of fires.
In recent years, a series of devastating wildfires swept through Napa County and surrounding regions, including the Atlas, Tubbs, and Nuns fires in 2017; and the Glass Fire and the LNU Lightning Complex fires in August and September 2020. These wildfires, collectively, burned hundreds of thousands of acres (CAL FIRE 2017, 2022, 2023), and destroyed thousands of structures, and resulted in an array of cascading public health, economic, and even viticultural impacts throughout the county. In the 2020 fires alone, eight percent of the season’s wine grapes were left tainted by wildfire smoke, and thus, were unusable (Chroback and Zimmer 2022). Additionally, in September 2022, an unprecedented and uninterrupted 10-day heat wave, with temperatures exceeding triple digits across much of the state, led to hundreds of excess deaths, including some residents of Napa County (CDPH 2023). In general, climate-related hazard events like these can have an array of adverse impacts on populations, the built environment, and community functions and over time, these events will likely increase in frequency, intensity, and/or duration because of climate change.
Recognizing these disasters, threats, and challenges, local jurisdictions within Napa County: County of Napa, the Cities of American Canyon, Calistoga, Napa, and St. Helena, and the Town of Yountville have come together to develop a Napa County Regional Climate Action and Adaptation Plan (RCAAP), the first public draft of which was released on August 1, 2025. The RCAAP can be found on the project webpage www.climateactionnapa.konveio.com <http://www.climateactionnapa.konveio.com>. Public input and comments are invited during the 60-day public review period from August 1 to September 30, 2025.
The RCAAP is a roadmap that identifies strategies, measures, and actions that guide the region to reduce greenhouse gas emissions and adapt to climate change. Shaped by input from residents, businesses, and community organizations across all six jurisdictions, it supports a more sustainable and resilient Napa County and requires bold and coordinated action across jurisdictional boundaries.
The RCAAP reflects regionally-tailored solutions that are representative of the unique environmental, economic, and social characteristics of the county. Additionally, the RCAAP builds upon existing climate change and sustainability initiatives throughout the county (some of which are detailed in Section 1.3), seeking to coordinate and amplify these and future efforts through a unified regional framework.
2019 Greenhouse Gas (GHG) Emissions Inventory
The first step in preparing this RCAAP was to build an understanding of the regional GHG emissions profile by preparing a countywide emissions inventory. Using 2019 as the baseline year, total countywide GHG emissions were estimated at approximately 1,221,861 metric tons of carbon dioxide equivalent (MTCO2e). GHG emissions inventories identify the sources, activities, and sectors that represent emissions within a jurisdiction and the relative contributions of each. The three primary GHGs included in the countywide GHG inventory are carbon dioxide (CO2), methane (CH4), and nitrous oxide (N2O).
The City of Napa accounted for the largest percentage of countywide emissions at 43 percent, followed by the unincorporated county at 31 percent, American Canyon at 16 percent, and St. Helena, Calistoga, and Yountville each at 5 percent or less.
The three largest contributing sectors to local GHG emissions were on-road transportation 39%, building energy 23%, and solid waste with 16% of total local emissions.
The four remaining sectors (i.e., off-road equipment, agriculture, wastewater, and imported water) in total accounted for approximately 22 percent of countywide emissions.
Community Engagement
Community engagement is a vital component of any effective climate action and adaptation planning process, ensuring that the plan reflects the needs, priorities, and values of the people it serves. County staff’s extensive public outreach and community engagement efforts resulted in responses and input from 310 individuals to an introductory survey which helped to gain a better understanding of how residents feel about climate change and how it affects their daily lives. Four community meetings were held in the summer of 2024 to identify existing conditions and key areas of concern for participants. 20 organizations partnered with the project team to hold focused group conversations to further explore the needs of the community. Engagement staff set up information tables at two community pop up events to gain direct access to diverse stakeholders. The project website <climateactionnapa.konveio.com> was set up as an information and activity hub for interested community members and stakeholders to find out more about the RCAAP, comment on background documents, and take the survey. The webpage continues to be a resource and highlights opportunities for community input and participation.
GHG Emissions Reduction Targets
Through the RCAAP Napa County Jurisdictions have set countywide GHG emissions reduction targets for 2030, 2035, and 2045, which are aligned with the State of California’s goals. They include:
• 42 percent reduction below 2019 levels by 2030,
• 57 percent reduction below 2019 levels by 2035, and
• 85 percent reduction below 2019 levels by 2045.
In addition to these quantitative targets, Napa County jurisdictions have set a goal in this RCAAP of achieving carbon neutrality by 2045 - primarily through natural carbon sequestration, in addition to strategies and measures to reduce GHG emissions in furtherance of the 85 percent reduction target by 2045.
GHG Reduction Measures
While legislative and regulatory actions at the regional, State, and federal levels will result in notable GHG emissions reductions on their own, additional efforts need to be taken locally by Napa County jurisdictions to fully achieve the established targets. These additional efforts come in the form of 46 distinct GHG reduction measures that were prepared for this RCAAP.
Across the six emissions sectors (Building Energy, On-Road Transportation, Solid Waste, Water and Wastewater, Agriculture, and Off-Road Equipment), 21 different GHG reduction strategies are supported by 46 measures and 107 actions. The GHG reduction measures reduce emissions from human activities (e.g., building energy use and transportation), and enhance carbon storage (e.g., carbon farming and restoring wildfire-affected areas).
The GHG reduction framework is designed for countywide application, and many measures will be applied and implemented consistently across all Napa County Jurisdictions, addressing broad issues and emissions sources that are shared across multiple jurisdictions. However, some GHG reduction measures do not apply uniformly across all jurisdictions and only apply to specific local contexts and needs.
The GHG reduction potential of the measures was quantified for 17 of the 46 measures. The remaining measures were not quantified for one or more reasons, including lack of available data or adequate quantitative methods, the qualitative nature of some measures, varying levels of uncertainty regarding the effectiveness of some measures, or limitations on local jurisdictions’ control over the impact of the measure (e.g., education, encouragement, supporting local partners).
Although 46 GHG reduction measures are included in the RCAAP, a few specific measures are projected to account for the vast majority of reductions from human-caused emissions by 2045. These include:
• BE-1: Retrofit Existing Buildings to Zero Carbon
• TR-9: Expand Renewable Diesel Availability
• AG-1: Reduce Fossil Fuel Consumption in Field Equipment
• SW-1: Increase Solid Waste Diversion
• SW-4: Increase Landfill Methane Capture Capacity
• WW-1: Reduce Methane Emissions from Wastewater Treatment Plants
(BE = Building Energy; TR = On-Road Transportation; AG = Agriculture; SW = Solid Waste; WW = Imported Water & Wastewater)
Altogether, the six measures account for approximately 91 percent of total emissions reductions in 2045.
If all GHG reduction measures are implemented as planned and regional growth aligns with projections, the reductions should meet both the 2030 and 2045 targets and the 2045 carbon neutrality goal. Actual reductions may be greater, as many measures are not quantified and could have additional reduction potential.
Carbon Sequestration GHG Reduction Measures
The RCAAP GHG reduction measures that have the potential to increase carbon sequestration include:
• AG-3: Expand Carbon Farming Practices
• AG-4: Report on Carbon Farming Practices
• AG-5: Expand the Urban Forest
• AG-6: Restore Woodland and Forest Habitat
• AG-7: Increase Sustainable Vineyard Certification
When bundled with other GHG reduction measures, these would help the county meet or exceed its carbon neutrality goal by 2045 and allow additional flexibility to meet the region’s carbon neutrality goal by providing a buffer for future variability and uncertainty when implementing the RCAAP.
Vulnerability Assessment
A climate-resilient community is one: (1) that can effectively cope with, manage, and minimize the impacts of current and future climate hazards (and climate change more broadly); and (2) that can recover efficiently and equitably when adverse impacts are experienced.
To effectively adapt to climate change, Napa County jurisdictions first conducted a climate change vulnerability assessment (VA) in April 2024 to determine countywide vulnerabilities of people, the built environment, and natural resources to various climate hazards, which refers to natural hazards that are worsened or altered due to the effects of climate change.
Five climate change effects were evaluated in the VA: (1) wildfire; (2) increased temperatures and extreme heat; (3) extreme precipitation, sea level rise, and flooding; (4) drought; and (5) energy grid impacts.
The VA includes distinct analyses that determine exposure, sensitivity, potential impacts, adaptive capacity, and vulnerability in the context of climate change.
Exposure: The presence of people, infrastructure, natural systems, and economic, cultural, and social resources in areas subject to harm.
Sensitivity: The degree to which a species, natural system, community, government, or other associated systems would be affected by changing climate conditions.
Potential Impacts: A specific negative result of a climate change effect, generally on a particular population or asset. The combination of exposure and sensitivity often determines potential impacts.
Adaptive Capacity: The combination of the strengths, attributes, and resources available to an individual, community, society, or organization that can be used to prepare for and undertake actions to reduce adverse impacts, moderate harm, or exploit beneficial opportunities.
Vulnerability: The degree to which natural, built, and human systems are at risk from climate change impacts. Overall, vulnerability is considered a function of exposure, sensitivity, potential impacts, and adaptive capacity.
The VA directly informed the preparation of 40 distinct adaptation measures included in this RCAAP, which are organized into six different strategies and aimed at reducing vulnerability, adapting to the impacts of climate change, and increasing community resilience.
Adaptation Strategies
Climate change adaptation involves adjusting to effects that are already occurring and preparing for those that are anticipated to occur in the future. Climate change adaptation planning enhances community resilience by evaluating jurisdiction-specific vulnerabilities and developing measures to respond to and prepare for current and future impacts.
Napa County jurisdictions’ existing hazard mitigation plans and general plan safety elements were reviewed to identify gaps in addressing climate-related hazards and risks (see Appendix K). The climate adaptation strategies, measures, and actions in the RCAAP fill gaps to enhance Napa County Jurisdictions' climate resilience.
The 40 adaptation measures from the RCAAP fall into the following six overarching adaptation strategies:
• All: Improve Napa County jurisdictions’ Overall Climate Resilience
• Fire: Prepare for and Adapt to Increased Wildfire Risk
• Temp: Prepare for Increased Temperatures and More Frequent Extreme Heat Events
• Flood: Prepare for More Frequent Extreme Precipitation and Flooding Events, Combined with Sea Level Rise Threats
• Drought: Prepare for More Frequent Drought Events and Enhance the Region’s Overall Water Supply Resilience
• Energy: Improve the Region’s Energy Grid Resilience
CEQA Initial Study
Napa County jurisdictions are currently preparing an Initial Study for the RCAAP, pursuant to CEQA. Napa County will serve as lead agency for the preparation of the Initial Study, with other incorporated jurisdictions acting as responsible agencies. The Initial Study will evaluate the potential environmental effects of the proposed RCAAP and its implementation, and the County and responsible agencies will make the appropriate environmental determination following completion of the Initial Study. Following completion of the environmental review process, each governing body will certify the CEQA document and adopt the RCAAP following a public hearing.
On June 27, 2025 the Napa Climate Action Committee (CAC) gave project staff direction to move forward with the recommended Initial Study of the RCAAP. The recommendation to initiate the preparation of the Initial Study was reached through conversations between the city managers of the six jurisdictions, the County CEO’s office, the All Jurisdiction Working Group (comprised of staff from all six jurisdictions), the project team, and the CAC.
Ascent will prepare an Administrative Draft Initial Study with mitigation measures if potentially significant impacts are identified. Staff from all 6 jurisdictions will have a chance to review and comment on the draft Initial Study prior to release for public review.
Implementation - including funding, costs, etc.
As Napa County jurisdictions move forward with adopting and implementing the RCAAP, sustained regional coordination and collaboration will be required to ensure adequate staffing is available to guide the many near-term actions necessary to implement the measures.
Napa County jurisdictions must also consider how to best leverage and prioritize existing local funding sources, while developing a strategy for securing new funding, such as state or federal grants, loans, or other special financing mechanisms, to support the longer-term investments required for successful RCAAP implementation. Appendix I of the RCAAP provides an assessment of funding and financing options identified as potential funding sources and financing mechanisms that could support implementation of the 9 priority measures for GHG reductions and 10 priority measures for climate adaptation.
Implementation of the RCAAP will also require regular monitoring and updates to ensure the plan is on target to achieve its near-term and long-term targets, while also remaining adaptable to new challenges and opportunities. Appendix H of the RCAAP provides specific implementation details for all GHG reduction and climate adaptation measures and actions. While the implementation matrices identify applicable jurisdictions, potential partners, implementing mechanisms, and estimated timeframes, a more detailed and tailored strategy framework plan for implementing the RCAAP will be necessary.
An implementation plan can help define each of the participating jurisdiction’s roles and priorities, increase accountability and transparency, clarify coordination needs, align RCAAP implementation with jurisdiction budget decisions, and department-level working plans. The CAC and the All Jurisdiction Working Group will be essential in ensuring a coordinated implementation plan aligns with each jurisdiction’s goals and clearly defines each jurisdiction’s role and responsibility in implementing the RCAAP measures.
Next Steps
Staff request the Napa County Board of Supervisors receive a presentation on the Draft Napa Regional Climate Action and Adaptation Plan.
The Draft RCAAP will be available for public review beginning on August 1, 2025, with a 60-day review period ending on September 30, 2025.
Upcoming Public Events and Community Engagement Opportunities
Open House Events
Wednesday, August 20, 2025, Yountville Open House
Thursday, August 21, 2025 American Canyon Open House
Wednesday, August 27, 2025 City of Napa Open House
*please visit climateactionnapa.konveio.com to rsvp for any of the above events
Presentations
Tuesday, August 05, 2025, Napa County Board of Supervisors
Friday, August 22, 2025, Climate Action Committee
Tuesday, September 02, 2025, Napa City Council
Wednesday, September 3, 2025, American Canyon Open Spaces, Active Transportation, and Sustainability Committee
Friday, September 9, 2025, St. Helena City Council
FISCAL IMPACT
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Is there a Fiscal Impact? |
No |
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Is it Mandatory or Discretionary? |
Discretionary |
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Discretionary Justification: |
Preparation of a Climate Action Plan is included in both the General Plan and the Strategic Plan and has been supported by the Board of Supervisors in several Resolutions. |
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Consequences if not approved: |
The County and other jurisdictions will have to prepare/update individual Climate Action Plans. There will be reduced cooperation and coordination in regional greenhouse gas emission reduction efforts, and potentially less access to future grant and/or state funding. |
ENVIRONMENTAL IMPACT
ENVIRONMENTAL DETERMINATION: The proposed action is not a project as defined by 14 California Code of Regulations 15378 (State CEQA Guidelines) and therefore CEQA is not applicable.